Executive summary
Introduction
The Young Persons’ Free Bus Travel Scheme (or the Under 22’s scheme) was launched on 31 January 2022. It provides the opportunity for free bus travel across Scotland for all young people resident in Scotland and aged 5-21 years old.
As part of the ongoing monitoring of the scheme, Transport Scotland commissioned a Year One Evaluation study, which took place between April and August 2023. This involved primary data collection, analysis of secondary data, and the comparison of results with the baseline study, which was conducted before the scheme was introduced. The evaluation included a survey and focus groups with young people (aged 5-23) and parents/carers, a consultation-based survey with professional stakeholders and interested organisations, and analysis of a range of secondary data sources. This report outlines the findings from the Year One Evaluation as it relates to the primary research with young people and parents/carers and the secondary data. A separate report details the findings from the stakeholder consultation and a summary report draws together the findings across all elements of the evaluation.
The survey with young people and parents/carers elicited 10,875 valid responses. This covered responses from both parents/carers (81%) and young people themselves (19%) and included a range of age and life stages of the children/young people who were the subjects of the survey. In addition, seven focus groups were conducted, with 42 participants contributing to these discussions. Focus group participants included a mix of young people and parents/carers, those who used the scheme and those who did not, and one group dedicated to bus users aged 22+ who were not eligible for the scheme.
During the design of the scheme a series of short, medium and long-term outcomes were identified against which to measure its impact and success. These expected outcomes are detailed in the table below, along with an assessment of progress based on the findings of the Year One Evaluation.
| Expected outcomes | Progress |
|---|---|
| 1 Increased numbers of young people registering for a card/aware of the scheme | Good progress to date |
| 2 Fewer young people learning to drive | Mixed results - longer timescale required |
| 3 Increased awareness of bus as a viable travel option | Good progress to date |
| 4 Increased awareness of bus as a viable travel option amongst young women | Good progress to date |
| 5 Reduction in travel costs for young people and their families | Good progress to date |
| Expected outcomes | Progress |
|---|---|
| 6 Increased numbers of young people using the scheme for journeys otherwise paid for | Good progress to date |
| 7 Journeys which would have been made by car (driving/lift from parents etc.) are made by bus | Good progress to date |
| 8 Young people have increased access to services | Good progress to date |
| Expected outcomes | Progress |
|---|---|
| 9 Reduction in poverty rates amongst young people | Longer timescale required to understand if any impact |
| 10 Improved access to education and employment opportunities | Good progress to date |
| 11 Improved access to social and leisure opportunities/activities | Good progress to date |
| 12 Reduction in private car kilometres | Impact unclear - longer timescale required to understand if any impact |
The table shows that good progress is being made to date against all of the expected outcomes, apart from outcomes 2 (Fewer young people learning to drive), 9 (Reduction in poverty rates amongst young people) and 12 (Reduction in private car kilometres), where a longer timescale is required to understand if there is any impact.
Key Findings
Awareness, Uptake and Use of the Scheme
Survey results showed that general awareness of the Young Persons’ Free Bus Travel Scheme was high (at 86%) and was considerably higher than it had been before the scheme was launched (67% in the baseline survey). Focus group feedback, however, suggested that the details of the scheme, including the policy aims and objectives, age of eligibility and possible restrictions around use, were slightly less well understood.
Official uptake figures showed that 59% of all eligible 5–21 year-olds had signed up to the scheme by the end of April 2023, although this ranged from 53% of those aged 5-15, to 70% of 16-21 year olds. Large variations were also found between local authority areas. Uptake among survey respondents was also high, with 74% signed up and using the scheme, and a further 8% had either signed up but stopped using it, or had signed up but not used it yet.
Just under two thirds (64%) of survey respondents that had signed up for the scheme indicated that the application process had been either very or fairly easy, with a quarter (25%) indicating they had found this fairly or very difficult. Those who had signed up more recently (since June 2022) however, were more likely to find the process easy, reflecting improvements that had been made to the getyourNEC application. Those who applied via their school or the Parents Portal were also more likely to indicate that the process had been easy.
Official usage data showed that a total of 62,178,745 trips had been made using the scheme between January 2022 (i.e. when it was launched) and April 2023. More trips were made by those aged 16-21, and females generated a higher number and proportion of trips than males. Most trips also occurred during weekdays. Frequency of use was also high among survey respondents, over a third (38%) said they used it five days a week or more, while a further 40% used it at least weekly.
The 23% of survey respondents and those focus group respondents who did not use the scheme outlined a range of reasons. The key issues were that they had not heard of it, they had turned 22 and were no longer eligible, issues with bus services (e.g., a lack of availability locally, reliability, frequency, route and timetable issues), safety concerns, a preference for other modes, or due to application problems or issues with the free travel card. Some noted that their card had expired, been lost or had stopped working. The most common application issues included difficulty in obtaining and providing the necessary documents for identification purposes, websites which sent applicants “round in circles”, and situations where applications (sometimes multiple applications) had been submitted but no card ever received. Both survey and focus group respondents highlighted a lack of support related to application issues, with enquiries often going unanswered or people being passed from one organisation to another with little/no success.
Impact on Travel Behaviour
Hands Up Survey Scotland (HUSS) data showed that bus use for travel to school had increased slightly in 2022 (the first year the Young Persons’ Free Bus Travel Scheme was introduced) compared to 2020 and 2021, while the proportions of pupils who walked and used park and stride (where people drive part of the way, park, and then walk the rest of the distance) both declined slightly. Comparisons of the baseline and follow-up surveys also indicated that car and train use had declined across nearly all journey purposes asked about, while use of the bus and active modes had increased since the introduction of the scheme. Qualitative feedback also indicated a switch from car use to bus for some, as young people did not have to rely on their parents/carers to drive them to destinations. Similarly, ScotRail data suggested there had been a general decline in the proportion of their business generated by child tickets since the Young Persons’ Free Bus Travel Scheme had been introduced.
Comparisons of the baseline and follow-up survey results showed that young people were travelling more often for social and leisure activities, as well as for shopping trips, since the introduction of the Young Persons’ Free Bus Travel Scheme. In addition, there had been an increase in the proportions of young people taking shorter journeys (i.e. those up to 30 minutes), particularly when travelling for education, shopping, healthcare, and for apprenticeships or training programmes.
Based on follow-up survey data, it was estimated that around 1,000,952 truly new bus journeys had been made by respondents since the introduction of the scheme, while 1,023,802 bus journeys would have been taken regardless of the scheme. Across all journey purposes, the majority of bus users in the follow-up survey also indicated that they used the bus now because it was free, ranging from 51% of those accessing an apprenticeship or training programme by bus, to 74% of those using the bus for social and leisure activities.
Across most journey purposes, over two thirds of survey respondents indicated that they now accessed existing locations more often and/or accessed new locations (ranging from 68% of those travelling for education as well as for their job/work, to 81% of those travelling for social and leisure activities). The only exception was for healthcare, where around half (49%) indicated there had been a change in location or frequency of travel.
Despite indications above that the scheme had generated a move away from car use towards buses, data related to driving lessons and tests were mixed. Data from the Driver and Vehicle Standards Agency (DVSA) and comparisons between the baseline and follow-up surveys showed that test rates and the desire to learn to drive had increased since the scheme was introduced. Drawing conclusions around the impact of the scheme, however, is complicated by the backlog in demand for driving lessons/tests generated by the Covid-19 pandemic. Focus group respondents provided more mixed preferences, with some noting that they/their child planned to delay learning to drive, or that they had stopped taking lessons, as a result of the scheme. Others however, had either already passed their driving test before the scheme was introduced, or were keen to learn to drive as soon as they were old enough, often due to a lack of viable public transport options or because they considered it a valuable life skill. A longer time period will be required to fully assess the nature and extent of any impact the scheme might have on young people’s desire to drive.
Affordability
Comparisons of the baseline and follow-up surveys showed little change in total household travel spend for parents/carers, however, a greater proportion were now spending less than 10% of that total on their child’s travel expenses. There was also a large increase in the proportion of young people (aged 16+) spending £0-£10 on travel after the scheme’s introduction, up by 26 percentage points, and decreases in the proportions across all higher spending brackets.
When rating how affordable they found travel and transport, the proportion who said it was either very or fairly affordable had risen, from 26% before the scheme was introduced to 38% afterwards. Those who used the scheme were more likely to rate travel and transport as affordable compared to those who did not use it. Further, when asked to rate their agreement with various statements in relation to bus use, 54% agreed that buses were affordable. This represented an increase of 25 percentage points since the introduction of the scheme and was the biggest change across all perceptions statements. Similarly, when asked to identify any issues they/their child experienced in using the bus, 20% selected cost as a barrier. This represented a large decrease (from 51%) compared to the baseline survey, a 31-percentage point reduction - the largest change in the barriers experienced.
Financial benefits were also flagged in the qualitative feedback as one of the main impacts of the scheme for young people and their families. It was felt that the scheme had removed cost barriers to accessing transport, minimised stress and anxiety related to travel costs, freed up money to spend on other things, and was considered to provide transport equality among young people meaning they could travel together regardless of individual’s financial circumstances. In addition, the scheme was considered to be particularly valuable for those experiencing poverty and during the current cost of living crisis.
Impact on Young People and Families
Over two thirds (69%) said that the scheme had allowed them to travel and do more without an adult. This was particularly the case for those aged 12+, with 83% of those aged 12-15 and 86% of those aged 16-21 indicating this, compared to 20% of those aged 5-11. The extent to which independence had grown was above that expected before the scheme was introduced, with 58% of baseline respondents noting that they expected it to provide greater independence.
Qualitative comments also identified independence for young people as another of the main benefits of the scheme. In addition, it was suggested the scheme had increased their/their child’s autonomy, confidence and responsibility. Again, however, the age of the child was felt to limit independence, with primary school pupils typically considered too young to travel independently.
Just 15% of follow-up survey respondents indicated that they/their child currently missed out on opportunities or activities due to access or travel restrictions. This was a near halving of this issue compared to the baseline, when 29% of respondents indicated such missed opportunities. A greater proportion of those who did not use the scheme (22%) experienced this issue compared to users (13%). Missed opportunities included educational and work opportunities, as well as a wide range of social and leisure activities.
Just over a third (34%) of survey respondents who had experience of using the scheme stated that they had been able to access new opportunities and activities. While new social, leisure and club-based activities were identified most often, there was also evidence of the scheme opening up new opportunities for education and work. Again, those aged 12+ were more likely to be accessing new opportunities compared to those of primary school age (20% of those aged 5-11, 36% of those aged 12-15, and 42% of those aged 16-21).
Of the survey respondents who had previously used the scheme but had stopped, just over a quarter (28%) said they had lost access to opportunities as a result of stopping using the scheme. Again, most issues related to the loss of access to social, leisure and activity-based opportunities, but a few respondents did note difficulties in getting to school, or a negative impact on their employment.
The scheme had also increased the use of buses for family travel, with 44% of parents in the follow-up survey noting this impact. This was largely consistent with expectations in the baseline survey, where 46% thought that they would travel by bus more as a family once the scheme had been introduced. A wide range of journey purposes were outlined for family travel, with the main ones including days out (both locally and longer distance journeys), social and leisure activities, shopping, to eat out, events, and visiting friends and family. The scheme was considered to have removed barriers to travel/transport and supported family activities that had previously been unaffordable for some. It was also suggested that children travelling with siblings was common (even where parents did not use the bus with them), and that the scheme had encouraged greater bus use among children travelling with their grandparents, where everyone could travel for free. Where family travel by bus had increased, it was largely because the bus was now perceived to be cheaper than using a car, particularly where parking difficulties and costs would be an issue. Where family travel had not increased, the main reason given was that adult fares remained prohibitively high, with other options being cheaper or more convenient.
Other key benefits of the scheme were said to include the removal of travel barriers for non-drivers and single car households, cashless travel was considered to be beneficial and safer for children, and the scheme was said to support young people’s mental health and wellbeing, particularly after Covid-19. There were also concerns raised for the impact on young people who could not access the scheme (typically due to application problems or lack of bus services), in terms of their independence, social skills and mental health.
Perceptions of and Issues with Bus Use
Survey respondents were asked to rate the extent to which they agreed with a series of statements related to buses and bus use. The areas which elicited the most agreement were that buses were environmentally friendly, affordable, made the roads safer, were clean and comfortable, and met respondents needs. There were improvements in most of the elements that respondents were asked about, as well as a reduction in the proportions concerned about the spread of viruses on-board buses. However, there were also slight increases in the proportions of respondents who agreed that buses were too busy/crowded and that there was lots of anti-social behaviour on buses.
Respondents in both the baseline and follow-up surveys were also asked to identify any issues or barriers they/their child experienced in using the bus. The main issues experienced since the introduction of the scheme were reliability or buses not turning up on time (noted by 49% of respondents), and that buses did not run often enough (identified by 45% of respondents). There was also an increase in those experiencing challenges related to service provision, including reliability, unsuitable timetables and lack of frequency. There were, however, positive reductions in the proportions who identified safety concerns at night (reducing by 11 percentage points) and when travelling alone (a six percentage point reduction).
Follow-up survey respondents were also asked to rate their perceptions of safety when using different modes of public transport. When considering bus use, comparison of baseline and follow-up survey results suggests a reduction in users sense of safety during the day, falling from 82% of respondents in the baseline who felt they were either always or often safe during the day, to 76% in the follow-up survey. Conversely, there was a slight improvement in the proportions who felt safe using the buses at night, rising from 37% who always or often felt safe in the baseline, to 39% in the follow-up survey. Comparing buses and other public transport modes rated in the follow-up survey shows that respondents felt safer on buses than any other modes of public transport during the day, however buses ranked third for travel at night, behind trams and trains (at 39%, 44%, and 40% respectively who said they were either always or often safe).
Despite greater safety concerns being expressed for night-time travel, several young people who participated in focus groups indicated that they would feel safer travelling by bus at night/in the dark compared to other options. This was particularly the case for young women and girls, who felt this would be safer than other options or than being on their own - with a few noting that they now went out more at night as they felt they and their friends could get home safely.
Experiences of anti-social behaviour, bullying and discrimination when using buses and other modes of public transport within the last 12 months were also explored. Just over half (54%) of the survey respondents indicated that either they/their child or their friends or family had seen or experienced anti-social behaviour, while 14% had seen or experienced bullying or discrimination. Most instances were experienced on buses, however, caution is needed here - as the survey focused on bus use respondents were more likely to be bus users and therefore more likely to recount experiences on buses, while use and experiences of other modes were under-represented. Shouting and swearing, people being under the influence of alcohol or drugs, and other aggressive or intimidating behaviour were the anti-social behaviour issues most often experienced. The most commonly experienced types of bullying and discrimination were sexism/misogyny and racism.
Focus group respondents also discussed concern about anti-social behaviour, which was considered to be largely (but not exclusively) perpetrated by young people. It was felt that the scheme had resulted in more anti-social behaviour occurring on and around buses, and that it was occurring either in new areas or more frequently in certain locations due to young people’s ability to travel more easily and in large groups. While some focus group respondents felt safer on other modes of public transport, others again felt safer on buses due to the use of CCTV, the proximity and accessibility of the driver, and the presence of other passengers who could help if a situation arose.
Without access to robust recording and locational data it was not possible to say for certain what the extent of any changes in instances of anti-social behaviour had been, and/or whether such behaviour had been displaced onto bus/into new areas. However, it appears that people perceive the situation has worsened since the introduction of the scheme, with this now being an issue which elicited greater levels of concern among passengers.
Unintended Consequences and Suggested Improvements
Qualitative comments provided in the survey and focus group discussions identified several other impacts and issues. These included:
- a possible reduction in active travel among young people, with some opting to take the bus short distances where they would have previously walked;
- variable provision of bus services meant young people had different access to the scheme and it’s benefits depending upon where they lived;
- that the scheme had created busier services and capacity issues on some bus services;
- welfare concerns, including children travelling far from home without their parent’s/carer’s knowledge, or getting lost/stranded in unfamiliar areas; and
- issues with the travel card not scanning on-board buses and an apparent lack of consistency in policy/approach from drivers in how this should be handled.
A range of possible or suggested changes/improvements to the scheme were also identified by survey and focus group respondents, including:
- expanding the scheme to include more modes (particularly ferries and trains), to include night buses, and extend the age limit to 26 or include all students;
- greater restrictions on eligibility, e.g., means testing, different products and usage limits by age group, or offer discounted rather than free travel;
- tackling anti-social behaviour, either by limiting hours of operation for the scheme or allowing travel cards to be removed/suspended if necessary;
- improving the application process and making greater use of technology to provide a digital card as well as physical version; and
- making more information about the scheme available to students, with foreign students studying in Scotland felt to be less aware of this.
Conclusion
Overall, the Young Persons’ Free Bus Travel Scheme was considered highly successful and beneficial for young people and their families across the first year of operation, with many more benefits and positive impacts outlined compared to emerging negative issues. In particular, the scheme appears to have had significant financial benefits for young people and their families, making travel more affordable. It also appears to have increased young people’s access to services and opportunities and improved independence and autonomy. Early signs also point towards a reduction in car use as a result of the scheme. The main negative issues were largely related to the provision or availability of bus services themselves, difficulties in relation to the application process, and perceptions of anti-social behaviour as a result of increased numbers of young people travelling by bus.
The benefits and impacts of the scheme will require longer-term monitoring to determine any sustained impacts, the scale of these, and new ‘norms’ once the scheme has been fully embedded and travel choices/patterns stabilised. However, early indications are very encouraging in relation to the extent to which the scheme is positively impacting on young peoples’ lives.